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Municipal Research News - Climate Change
Climate Change - A Hot Issue for Local Governments
From our perspective in 2009, climate change is the great challenge of the 21st century. Significant effects associated with climate change, such as sea level rise and dramatic alterations in weather patterns, will require actions at all levels of government and in many different agencies and departments. Climate change is an international, national, regional, and local issue. Utah author and naturalist Terry Tempest Williams has said that "global warming is now local warming."
This article focuses on efforts that can be undertaken at the local level in Washington State. Actions will be needed both to mitigate the effects of climate change (mitigation) and to adapt to effects of global warming that are unavoidable (adaptation). Mitigation involves reducing greenhouse gas emissions. Washington State and California have established targets that require reductions in greenhouse gases in future years. RCW 70.235.020 requires overall emissions of greenhouse gases in Washington State to be reduced to 1990 levels by 2020, and by 2035 to 25 percent below 1990 levels, and by 2050 to 50 percent below 1990 levels. RCW 70.235.020 also sets forth reporting requirements to ascertain whether target emissions levels are being achieved.
With so much media coverage of the potentially disastrous effects of climate change, the emphasis of this article is on what local governments can do rather than on exploring the problem in depth or reviewing the scientific background. Most scientists believe that some global temperature rise is inevitable by 2050 (1-2 degrees Celsius). For more background on the scientific evidence of climate change, see "The Invisible Player in Climate Change," by Anindita Mitra, MRSC Planning Advisor, "Part 1: Making Sense of the Science." MRSC has developed a web page on "Climate Change" at http://www.mrsc.org/subjects/environment/climatechange.aspx. New information on this topic is being produced on a daily basis, so updates are made frequently.
Washington State agencies and several local governments within our state have played a leadership role in addressing climate change. In the last five years, Governor Gregoire and the Legislature have taken major actions to deal with the impacts of climate change. These include the creation of a climate change framework in 2008 (which established the state greenhouse gas emissions reduction limits); the passage of a climate change mitigation act, also in 2008; and several executive orders from Governor Gregoire, including 09-05 regarding "Washington’s Leadership on Climate Change." In Washington, the Department of Ecology has a lead role in climate change activities, and the Department of Commerce has also been involved in planning efforts. Washington is part of the Western Climate Initiative, a group of western states and Canadian provinces that have come together to address the regional challenges associated with climate change. Seattle, King County, Bellingham, and Olympia are among the Washington jurisdictions that have been in the forefront of local governments in addressing climate change.
At the federal level, both the House and Senate are considering bills that would establish a national greenhouse gas cap-and-trade program. Cap-and-trade involves a central authority (such as a government or international body) that sets a limit or cap on the amount of a pollutant that may be emitted. Companies are issued emission permits and are required to hold an equivalent number of allowances (or credits) that represent the right to emit a specific amount. The total amount of allowances and credits cannot exceed the cap, limiting total emissions to that level. To be effective in meeting greenhouse gas emission reduction targets, cap-and-trade gradually steps down the cap limits over time. Companies that need to increase their emission allowance must buy credits from those who pollute less. The transfer of allowances is referred to as a trade. In effect, the buyer is paying a charge for polluting, while the seller is being rewarded for having reduced emissions by more than what was required.
In September 2009, the EPA released a proposed rule that would regulate greenhouse gas emissions from large stationary sources under the existing federal Clean Air Act permitting programs. The Washington State Department of Ecology has released draft rules regulating greenhouse gases that are more stringent than those proposed by EPA. Greenhouse gas reporting is the first step toward greater regulation of the sources of carbon dioxide. The proposed state rule would affect businesses and municipal vehicle fleets that generate 2,500 metric tons or more of carbon dioxide emissions per year; this could include large cities and counties. The first reporting period will be for 2009 emissions, and the first reporting of emissions is due to the Department of Ecology by October 31, 2010.
Why do local governments need to be involved in climate protection?
Local governments control day-to-day municipal activities that affect the amount of energy used and waste generated. Local governments are also responsible for the long-term planning for the community, including land use and zoning decisions, comprehensive planning, control over building codes and licenses, infrastructure investment, municipal service delivery, and management of schools, parks, and recreation areas. Also, local government leaders can have an influence on citizen behaviors, such as transportation options and energy consumption patterns.
The benefits of a local government climate protection program can include saving taxpayer dollars through energy efficiency and transportation initiatives, improving air quality and related public health benefits, and making the community a more desirable place to live by enhancing overall quality of life.
What can local governments do to address global warming and climate change?
Since October 2005, when King County sponsored a climate change conference, the amount of information available to local governments about climate change has increased dramatically. ICLEI-Local Governments for Sustainability is one of the key organizations working with cities and counties. ICLEI is an international organization of local governments committed to advancing climate protection and sustainable development. ICLEI USA has a regional office in Seattle, hosted by the city of Seattle. ICLEI works with more than 50 local government members in the Northwest to assist with climate mitigation and climate adaptation. ICLEI offers clean air climate protection software, publications, training, and other assistance to local governments. Washougal is one of 21 pilot cities participating in ICLEI’s Carbon Disclosure Project, which involves voluntary reporting of greenhouse gas emissions and other climate change-related data. ICLEI is also developing the STAR Community Index, a national, consensus-based framework for gauging the sustainability and livability of U.S. communities.
The U.S. Conference of Mayors launched a Climate Protection Center in 2007 under the leadership of Seattle Mayor Greg Nickels, and many Washington jurisdictions have signed the Mayors Climate Protection Agreement. As of October 2009, the mayors of one thousand local governments had signed the agreement.
What specific actions can local governments take beyond signing the climate protection agreement and becoming members of ICLEI? Here are a few examples:
- Develop a climate action plan or sustainability strategy. Seattle, Anacortes, Olympia, Coupeville, Snoqualmie, Mountlake Terrace, and Bellingham have developed specific plans to address climate change. Shoreline adopted a comprehensive sustainability strategy. Such plans could be adopted as elements of the comprehensive plan. Lynnwood has adopted an Energy and Sustainability Element of its comprehensive plan that addresses climate change. At this time, there is no GMA requirement for comprehensive plans to specifically address climate change; however, this issue is likely to be considered by the state legislature in the future. In 2008, a Department of Community, Trade and Economic Development (now Department of Commerce) advisory group supported the addition of climate change to the goals in the Growth Management Act. The "Washington APA Sustainable Washington" report calls for the next round of comprehensive plan updates to focus on climate change.
- Conduct a greenhouse gas emissions inventory (of government actions and operations, as well as of all activities city or county-wide) and adopt emissions reduction targets. Such an inventory can be a key piece of a climate action plan or an energy element of a comprehensive plan. A greenhouse gas emissions inventory can be time-consuming to develop and may involve hiring a consultant or intern.
- Include climate impacts in assessing environmental impacts (including air quality, transportation, and energy) under the State Environmental Policy Act (SEPA). King County and Seattle are requiring county and city agencies to consider climate impacts as part of SEPA project review. The Washington State Department of Ecology has established a SEPA and climate advisory group to follow up on actions recommended by the state’s Climate Action Team in 2008.
- Reduce greenhouse gas emissions in local government operations, including energy use, waste and recycling, water delivery and wastewater treatment, transportation, and the built environment.
- Conduct a climate change vulnerability and risk assessment and integrate climate change scenarios into emergency and disaster response plans of local governments. Redmond has included an assessment of climate change impacts in the latest update to its Hazards Mitigation Plan (2009).
- Encourage dense, compact urban centers and transit-oriented developments that reduce dependence on the automobile. This is one of the fundamental precepts of the Growth Management Act and is a key issue for planners to address in their growth management comprehensive plan updates.
- Establish local and regional transfer of development rights (TDR) programs to encourage new development in high-density receiving areas. Seattle and King County have developed a regional TDR program. This program is a voluntary, incentive-based, and market-driven approach to preserve land and relocate development growth away from rural areas in unincorporated King County and into Seattle. A similar program between King County and Bellevue is under development.
- Review shoreline and critical areas regulations and plans for shoreline and floodplain areas to limit development in frequently flooded areas and in low coastal areas susceptible to sea level rise. This can be addressed in shoreline master program updates and in revisions to critical areas ordinances associated with GMA plan updates or annual comprehensive plan amendments.
- Update building and land use regulations to encourage green building design, cluster subdivisions, and neighborhoods developed with sustainability in mind. Many communities are supporting green building design through incentive programs or expedited permit processing, and some are requiring green design for new municipal buildings. Clark County and the city of Vancouver have conducted a joint study on the identification of code barriers to sustainable development. Issaquah has established zHome, a zero net energy green building demonstration project.
- Encourage low-impact development (LID) practices that reduce stormwater runoff and encourage water conservation. Many jurisdictions are already doing this in their stormwater and drainage design manuals.
- Establish green purchasing policies for government buildings, vehicles, furnishings, and equipment. This includes programs to use more fuel-efficient vehicles for city and county motor pools. King County and 21 other Puget Sound local governments developed the Evergreen Fleet Standard, a standard for vehicle fleets that is similar to the Leadership in Energy and Environmental Design (LEED) standards for green buildings.
- Support and expand local recycling programs. The energy used in the industrial processing of virgin materials and in their transportation involves burning fossil fuels, such as gasoline, diesel, and coal, all major sources of carbon dioxide and other greenhouse gases. Although manufacturing goods from recycled materials still requires energy, it is much less than extracting, processing, and transporting raw materials.
- Encourage the development of green businesses and industries through local economic development programs. Promote opportunities for government investment in clean technology. This can boost overall community economic development during a period of economic downturn when green industries are seen as an important element of the regional and national economy.
- Reduce greenhouse gases by improving mass transit programs, promoting increased transit ridership, and encouraging more bicycle use, carpooling, vanpools, carsharing, commute trip reduction programs, and pedestrian and bicycle-friendly alternatives to single-occupant vehicle use.
- Offer opportunities to expand alternative energy sources, such as wind and solar energy, through green energy purchase programs of utilities and by providing locations for wind and solar facilities through local comprehensive plans and development regulations.
- Support regional and national efforts to adopt carbon standards and carbon offset (or carbon trading) programs.
- Encourage local food initiatives, community-supported agriculture, community gardens, farmers markets, and preserve regional farmland, especially close to major urban centers.
Local government strategies to address climate change can be divided into four areas: (1) mitigation; (2) adaptation; (3) long-range planning; and (4) current planning. Mitigation efforts by local and state governments are underway, including reducing greenhouse gas emissions; however, even with mitigation, some of the effects of global warming and other climate changes are inevitable. Therefore, adaptation to climate change is also required, including efforts to limit development in floodplain and shoreline areas where more frequent floods and raised sea level can be disastrous. Adaptation also involves water supply planning, since regional water supplies will be affected by reduced snowpack levels in the Cascades associated with global warming. Climate mitigation plans and climate or energy elements of comprehensive plans can address long-range impacts on the environment, including encouraging the development of compact, energy-efficient communities. In addition, current planning and permit review activities can help to promote and require sustainable building design, conservation-based subdivisions, and sustainable neighborhoods.
The Washington Chapter of the American Planning Association (APA) has developed an extensive report on "Sustainable Washington 2009: Planning for Climate Change." The focus of this report is on actions planners can take to mitigate the effects of climate change and to adapt to the unavoidable impacts of global warming. "Sustainable Washington" calls for the next round of comprehensive plan updates to focus on climate change.
Stay tuned - this is an issue facing us all and, unless we take action, will be a rising concern for future generations. At this point, there are few regulations regarding climate change that directly affect local governments in Washington; however, this issue is going to stay in the limelight, and we can expect additional regulations and guidelines in the future from federal and state governments. Forward-looking local governments will want to address climate change issues in land use, transportation, and utility planning activities. Both the GMA and SEPA can be used as starting points for addressing climate protection at the local level in Washington State. If you have information to share on this topic, please contact Carol Tobin, MRSC planning consultant ctobin@mrsc.org.
Key Resources on Climate Change
The following are links to key Web resources on Climate Change:
- "The Invisible Player in Climate Change," by Anindita Mitra, MRSC Planning Advisor, "Part 1: Making Sense of the Science" http://www.mrsc.org/focus/pladvisor/pla0709.aspx
- "Climate Change," MRSC web page http://www.mrsc.org/subjects/environment/climatechange.aspx
- Cities for Climate Change Campaign, ICLEI http://www.iclei.org/index.php?id=800
- Climate Action Handbook - Resource guide on climate protection created by ICLEI - Local Governments for Sustainability with support from the City of Seattle and the U.S. Conference of Mayors http://www.icleiusa.org/action-center/planning/climate-action-handbook
- Mayors Climate Protection Center, U.S. Conference of Mayors http://www.usmayors.org/climateprotection/revised/
- "Climate Change," Washington State Department of Ecology web page http://www.ecy.wa.gov/climatechange/
- "Climate Change Mitigation through the Growth Management Act," Washington State Department of Ecology http://www.ecy.wa.gov/climatechange/growthmgt.htm
- "Sustainable Washington 2009: Planning for Climate Change," Washington Chapter, American Planning Association http://www.washington-apa.org/sustainable_washington
- Preparing for Climate Change: A Guidebook for Local, Regional, and State Governments, Snover, A.K. et al., Climate Impacts Group, King County, and ICLEI-Local Governments for Sustainability, 2007. Intended to help local, regional, and state government decision-makers prepare for climate change by recommending a detailed, easy-to-understand process for climate change preparedness based on familiar resources and tools http://www.cses.washington.edu/db/pdf/snoveretalgb574.pdf
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